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EUROPEAN COMMISSION Directorate-General for European Civil Protection and Humanitarian Aid Operations (ECHO)

Humanitarian Aid Decision

11th

European Development Fund (EDF)

Title: Commission decision financing humanitarian actions in the

Caribbean from the 11th

European Development Fund (EDF)

Description: Responding to Hurricanes Irma and Maria

Location of action: Caribbean (Dominica, Cuba, Saint Kitts and Nevis)

Amount of Decision: EUR 5 million

Decision reference number: ECHO/-CR/EDF/2017/02000

Supporting document

1 Humanitarian context, needs and risks

1.1 Situation and context

Category 5 Hurricane Irma caused devastation on many of the Caribbean islands, with

maximum sustained winds of 296 km/h, bringing heavy rains and deadly waves. It was

formed on 30 August and dissipated on 16 September. Irma is the longest lived storm of that

intensity anywhere around the globe for the past 50 years. Cuba, Antigua and Barbuda, Turks

and Caicos Islands, Saint Kitts and Nevis, Anguilla, British Virgin Islands, Saint Martin, Sint

Maarten and Saint Barthélemy were the most severely affected countries. At least 41 people

reportedly died. Robust preparedness measures taken by national and local authorities

contributed to limit the death toll, but the magnitude of the event, with its combination of

strong winds, storm surge and intense rainfall, resulted in severe damage to housing and

critical infrastructure and services, including health centres, telecommunication, electricity,

water, sewage and waste systems, as well as agricultural land. It is estimated that more than

5.8 million people have been affected across the Caribbean.

Less than two weeks after Hurricane Irma, Category 5 Hurricane Maria made landfall in

Dominica on 19 September with maximum sustained winds of 260 km/h and with a

devastating impact. Hurricane Maria brought about further humanitarian consequences in a

region already severely affected by Hurricane Irma. After impacting Dominica, Maria

continued moving west-northwest towards Puerto Rico causing devastating effects in the

Ref. Ares(2017)5806628 - 28/11/2017

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island. Heavy rain, strong winds and storm surge affected the rest of Leeward Islands,

including Saint Kitts and Nevis, Puerto Rico, Dominican Republic, Haiti, Turks and Caicos

Islands and Bahamas between 19 and 24 September, adding to Irma’s impact. Hurricanes

Irma and Maria combined left at least 52 deaths across the region, including 27 deaths in

Dominica, where 2 751 people are now living in 100 collective centres. Guadeloupe,

Montserrat and Saint Kitts and Nevis (SKN) have also been affected by Hurricane Maria,

compounding Irma’s effects on those islands.

1.2 Identified humanitarian needs

In Dominica, 65 000 people are estimated to be in need of assistance. Out of a total 26 085

houses in the country, 7 255 are moderately damaged, 10 272 highly damaged and 5 961

destroyed. Schools remain closed, which leaves 18 251 children and adolescents without

access to education. At the time of drafting, 32 out of the country’s 76 primary and secondary

schools are being used as collective centres. Although road access is improving, there are

limited vehicles available for the delivery of relief items and clearance of solid waste.

The majority of commercial businesses remain closed and water supply systems have only

been partly re-established. Water and electricity services are being restored in the main urban

centres although periodic breakages continue to be reported and much of the rural areas are

without water. The Government reported that 100 per cent of communities have been reached

with some sort of relief delivery, which does not imply that 100 per cent of the people have

received individual assistance.

Emergency shelter materials are urgently needed. According to the authorities, shelter

assistance is required for health facilities, homes for the elderly, and for people in collective

centres, which would encourage people to return home and would allow the buildings,

including schools, to return to their original purpose.

Distribution and installation of emergency roofing supplies such as tarpaulins is still needed

to meet the current safe roofing demand. Rehabilitation of roofs, windows and water and

sanitation systems in educational institutions is a priority, while bedding materials (cots,

sleeping bags, blankets) are needed for shelters. A shelter to housing plan to promote quick

action towards early recovery needs to be developed.

Further assistance to debris removal and waste management is required. Repairing the

estimated 29 damaged/non-operational health facilities is also a priority, including key

facilities for Princess Margaret Hospital. Food distribution is ongoing and is still required

across the country. Potable water in communities, health care facilities, shelters and schools

is urgently required until all 44 water networks are repaired. Finally, training programs and

public awareness material on effective roof construction may be needed in order to help

building back better.

In Cuba, it is estimated that 2.1 million people remain in need of assistance in the sectors of

shelter, food security, health, education and WASH (water, sanitation and hygiene) in 33

most affected municipalities of the country.

Outstanding urgent needs are oriented mainly towards shelter and food security for the most

affected families in the most affected municipalities. Temporary solutions for a least 212 000

people (safe roofing modules) and support to local production of materials are necessary,

along with the distribution of non-food items (NFIs) for at least 212 000 people, in priority

those who have lost all their belongings. Coverage of basic food needs, especially for

vulnerable groups (120 000 people out of 667 000 people in 14 municipalities) is also urgent.

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In Saint Kitts and Nevis, the damage has been conservatively estimated at USD 20 million,

livelihoods being specifically affected.

An assessment of agriculture and marine shows that Irma-related damage includes the loss of

green houses, fruit trees, animal feed, crop fencing, pig pens, equipment and hundreds of

animals. Substantial damages were reported in the Department of Marine Resources, mainly

at the Fisheries Cooperative Building in Dieppe Bay and the break water facility in Old Road.

Complementary assistance is required in terms of livelihoods recovery, non-food items as

well as mainstreaming DRR.

1.3 Risk assessment and possible constraints

Recent heavy rains, insufficient stocks of building materials and ongoing logistical

constraints linked to both telecommunications and the transportation of humanitarian relief in

the region, especially in Dominica and Cuba, are some of the current constraints.

Despite these constraints, it is assessed that the overall context is conducive for an adequate

and timely response.

2 Proposed EU humanitarian aid response

2.1 Rationale

The passage of Hurricanes Irma and Maria has generated severe humanitarian needs among

most vulnerable households. Therefore, the most vulnerable households must be at the centre

of the response strategy, which requires articulating short-term emergency assistance with

longer-term development initiatives. It is crucial to ensure the coverage of immediate acute

needs while contributing to sustainable self-sufficiency. Solutions are required to allow most

vulnerable households to access immediate shelter solutions, food, safe water, and health and

education services in Cuba and Dominica, while ensuring the full recovery of these sectors

through longer-term funding. Support to the most vulnerable population will also be

considered as appropriate in Saint Kitts and Nevis. Disaster Risk Reduction will be

mainstreamed in the response; a regional approach allowing the sharing of good practices,

particularly from Cuba, will be promoted as much as possible. Where feasible, assistance will

be implemented through cash transfers, combined with livelihood support, adopting a multi-

purpose cash programming approach. Furthermore, in Dominica, schools being used as

temporary shelters will receive minor repairs including necessary WASH infrastructure.

Systematic protection mainstreaming will also be supported.

The humanitarian response will be part of a wider LRRD (Linking Relief, Rehabilitation and

Development) strategy, which will encompass initiatives aiming at strengthening key sectors

and livelihoods, while applying a practical resilience approach to decrease vulnerability to

shocks and to support preparedness, mitigation and coping capacities in case of a new crisis.

2.2 Actions

Humanitarian actions to be financed under the Commission decision financing humanitarian

actions in the Caribbean from the 11th European Development Fund (EDF) would aim

overall at mitigating the impact of Hurricanes Irma and Maria by ensuring coordinated and

effective assistance to those most affected in order to cover their immediate needs and

support an early recovery of livelihoods, in synergy with longer-term development dynamics,

through:

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1. Mitigating the impact of Hurricane Maria in Dominica by ensuring coordinated and

effective assistance for those most affected in order to cover their immediate needs, in

particular shelter, education, health and WASH and Disaster Risk Reduction, establishing

relevant synergies and complementarity with longer-term development dynamics.

2. Mitigating the impact of Hurricane Irma in Cuba by ensuring coordinated and effective

assistance for those most affected in order to cover their immediate needs, in particular

shelter and food security, and Disaster Risk Reduction, establishing relevant synergies

and complementarity with longer-term development dynamics.

3. Mitigating the impact of Hurricanes Irma and Maria in Saint Kitts and Nevis by ensuring

coordinated and effective assistance for those most affected in order to cover their

immediate needs, in particular shelter, food security and livelihoods support and Disaster

Risk Reduction, establishing relevant synergies and complementarity with longer-term

development dynamics.

2.3 Components

2.3.1 Dominica: Shelter, Education, Health and WASH

Shelter: assistance will include the distribution of tarpaulins, zinc, safe roofing modules,

blankets, mosquito nets and kitchen sets, as well as any other relevant relief items. Training

on construction of emergency shelters and long-lasting use of tarpaulins technics will be

promoted as well as the provision of building materials for the permanent repair of roof

structures.

Education: the rapid resumption of schooling for children and adolescents will be supported,

with the immediate reactivation of 27 schools (low to moderately damaged), as well as access

to psychosocial support under the Return to Happiness (RTH) programme. The proper

functioning of WASH systems in schools will also be ensured.

Health: restoring access to services in the 29 damaged health centres, ensuring access to safe

water in the health centres and epidemic surveillance.

WASH: improving access to water in school and health facilities, distribution of hygiene kits

and provision of safe water will continue. Basic rehabilitation of water and sanitation

systems; water treatment; improvement of household water storage, and hygiene promotion;

removal of the rubble, cleaning of the drains, rehabilitation of the key access points, such as

culverts and water channels will be promoted.

Disaster Risk Reduction will be mainstreamed in the response.

2.3.2. Cuba: Shelter and Food Security

Shelter: the assistance will include the distribution of tarpaulins and zinc, as well as safe

roofing sets. House kits including sheets, mattresses mosquito nets and kitchen sets will be

provided, as well as any other relevant relief items. Training on construction and long-lasting

use of tarpaulins technics will be promoted as well as the provision of building materials for

the permanent repair of roof structures.

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Food assistance: to cover food assistance needs with additional 2 months of food distribution

for at least 120 000 vulnerable people.

Disaster Risk Reduction will be mainstreamed in the response; specific attention will be paid

to promoting the sharing of good practices in a regional dimension.

2.3.3. Saint Kitts and Nevis: Shelter, Food Security and Livelihood and Disaster Risk

Reduction

Cash transfer programming for short term livelihoods support (agriculture and fishery) will

be considered for most vulnerable households. A specific market analysis will be made in

order to monitor the market prices as importations rely mainly on Dominica for food

provision as well as St Maarten and Puerto Rico, also severely affected by Irma and Maria.

Disaster Risk Reduction will be mainstreamed in the response, as well as specific

preparedness actions including prepositioning of stocks (hygiene and kitchen kits).

2.4 Complementarity and coordination with other EU services, donors and

institutions (See table 3 in annex)

The intervention strategy proposed in this document is part of a wider EU LRRD recovery and

reconstruction strategy in Hurricane Irma/Maria-affected areas, putting most vulnerable

households at the centre. The strategy, jointly developed by DG ECHO and DG DEVCO, is

based on four criteria:

- Joint targeting of beneficiaries

- Complementarities at geographical level

- Complementarities in terms of components to be covered

- Continuity in terms of timeline

In Dominica, a final Budget Support disbursement of EUR 3.5 million of the ongoing state-

building contract (post–Erica) could be released shortly and additional resources (EUR 2.62

million) will be mobilised with a new programme under preparation on renewable energy.

The request for EU support from the envelope B has been received, and an indicative of EUR

11 million is expected in order to support the implementation of the Country’s reconstruction

plan (build a better Dominica) and resume the main state functions through direct budget

support.

In Cuba, in the sector of sustainable agriculture and rural electrification EUR 4 million are

planned to ensure linkages with food assistance provided by ECHO in affected areas. The

PROACT programme for resilient agriculture for EUR 2 million will link with past and

current drought preparedness actions supported by ECHO and with ECHO's response in food

assistance. In GCCA, Climate Change and DRR, up to EUR 5 million will ensure the link

with ECHO response in the North and South Coasts. In the province of Sancti Spiritus with

Agrocadenas programme on productive chains, an additional amount of EUR 1 million will

ensure linkage with ECHO's response. With the Civil Society and Local Authorities, on

Sustainable agriculture, an amount of EUR 2 million in Camaguey will provide linkage with

ECHO's response. Finally, EUR 4 million will be mobilised from the B-envelope in the area

of food security and livelihoods recovery.

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In Saint Kitts and Nevis, a new budget support programme for EUR 2.6 million is under

preparation on renewable energy and this will include in its targeting the same communities

as ECHO on coastal areas. Moreover, the B envelope is requested for an amount of EUR 0.5

million to support the recovery of damaged energy infrastructure and resilience to climate

related hazards, through a top-up of the planned budget support programme on Renewable

Energy.

Main donors in the region are USAID/OFDA, Global Affairs Canada and DFID, with whom

complementary actions will be promoted through support to common partners.

In Dominica, a Flash Appeal was launched on 29 September to cover the needs of 65 000

people for an amount of USD 31.1 million. The CERF approved USD 3 million to implement

projects contained in the Flash Appeal. The appeal is presently covered by 19%. In the

Caribbean (except Dominica and Cuba), an action plan has been launched for USD 27

million to cover needs for 265 000 people. The plan is presently resourced by 17.5%.

In Cuba, a UN Action Plan was launched for USD 55.8 million to cover the needs of 2.1

million people. The CERF approved 8 million to implement projects contained in the Action

Plan. The appeal is presently covered by 18%.

2.5 Duration

The duration for the implementation of the actions financed under this Decision shall run for

a maximum of 18 months.

3 Evaluation

Under Article 18 of Council Regulation (EC) No.1257/96 of 20 June 1996 concerning

humanitarian aid the Commission is required to "regularly assess humanitarian aid actions

financed by the Union in order to establish whether they have achieved their objectives and to

produce guidelines for improving the effectiveness of subsequent actions." These evaluations

are structured and organised in overarching and cross cutting issues forming part of ECHO's

Annual Strategy such as child-related issues, the security of relief workers, respect for human

rights, gender. Each year, an indicative Evaluation Programme is established after a

consultative process. This programme is flexible and can be adapted to include evaluations

not foreseen in the initial programme, in response to particular events or changing

circumstances. More information can be obtained at:

http://ec.europa.eu/echo/policies/evaluation/introduction_en.htm

4 Management Issues

Humanitarian aid actions funded by the European Union are implemented by NGOs and the

Red Cross National Societies on the basis of Framework Partnership Agreements (FPA), by

Specialised Agencies of the Member States and by United Nations agencies based on the

Financial Administrative Framework Agreement with the UN (FAFA) in conformity with

Article 17 of the Financial Regulation applicable to the 11th

EDF, together with Article 178

of the Rules of Application of the Financial Regulation applicable to the general budget of

the European Union. These Framework agreements define the criteria for attributing grant

agreements and contribution agreements and may be found at

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http://ec.europa.eu/echo/partnerships/humanitarian-partners_en

For NGOs, Specialised Agencies of the Member States, Red Cross National Societies and

international organisations not complying with the requirements set up in the applicable EDF

Financial Regulation for indirect management, actions will be managed by direct

management.

For international organisations identified as potential partners for implementing the Decision,

actions will be managed under direct or indirect management.

Individual grants are awarded on the basis of the criteria enumerated in Article 7.2 of the

Humanitarian Aid Regulation, such as the technical and financial capacity, readiness and

experience, and results of previous interventions.

5 Annexes

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Annex 1 - Summary decision matrix (table)

Actions Allocated amount by specific

objective (EUR)

Geographical area of

operation

Activities Potential partners

Mitigate the impact of Hurricane Maria in

Dominica by ensuring coordinated and

effective assistance for those most affected in

order to cover their immediate needs, in

particular shelter, education, health and

WASH and Disaster Risk Reduction,

establishing relevant synergies and

complementarity with longer-term

development dynamics.

2 600 000 Dominica

- Shelter

- Education

- Health

- WASH

- Disaster Risk

Reduction

IFRC

UNICEF

IOM

PAHO

WFP

UNDP

FAO

Child Fund

Mitigate the impact of Hurricane Irma in

Cuba by ensuring coordinated and effective

assistance for those most affected in order to

cover their immediate needs, in particular

shelter and food security, and Disaster Risk

Reduction, establishing relevant synergies

and complementarity with longer-term

development dynamics.

2 300 000 Cuba

- Shelter

- Food security

- Disaster Risk

Reduction

IFRC

UNICEF

IOM

PAHO

WFP

UNDP

FAO

Child Fund

Mitigate the impact of Hurricanes Irma and

Maria in Saint Kitts and Nevis by ensuring

coordinated and effective assistance for those

most affected in order to cover their

immediate needs, in particular shelter, food

security and livelihoods support and Disaster

Risk Reduction, establishing relevant

synergies and complementarity with longer-

term development dynamics.

100 000 Saint Kitts and Nevis - Shelter

- Food security

- Livelihoods

support

- Disaster Risk

Reduction

IFRC

UNICEF

IOM

PAHO

WFP

UNDP

FAO

Child Fund

Contingency reserve 0

TOTAL 5 000 000

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Annex 2 - List of previous EU/Commission humanitarian aid decisions

List of previous EU/Commission humanitarian aid decisions operations in Cuba, Dominica, St Kitts and Nevis

2015 2016 2017

Decision Number Decision Type EUR EUR EUR ECHO/DRF/BUD/2015/91000

DOMINICA Ad hoc 300 000.00

ECHO/DRF/BUD/2017/91000

DOMINICA Ad hoc 250 000.00

ECHO/-AM/BUD/2917/91000

DOMINICA Ad hoc 500 000.00

ECHO/-CM/BUD/2015/91000

CUBA Ad hoc 2 450 000.00

ECHO/-CR/BUD/2016/91000

CUBA Ad hoc 600 000.00

ECHO/-AM/BUD/2017/91000

CUBA Ad hoc 700 000.00

Sub-total 2 750 000.00 600 000.00 1 450 000.00

TOTAL 4 800 000.00

Date : 11/10/2017 Source : HOPE

(*) decisions with more than one country

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Annex 3 - Overview table of the humanitarian donor contributions

Donors in Cuba, Dominica and St Kitts and Nevis over the last 12 months

1. EU Member States (*) 2. EU DOMINICA EUR EUR

Germany 50 000.00 ECHO 750 000.00

Italy 100 000.00

Sweden 104 384.13

United Kingdom 5 600 000.00

ST KITTS AND NEVIS 0 0

CUBA

Luxemburg 54 909.00 700 000.00

Italy 500 000.00

Germany 50 000.00

Subtotal 6 459 293.13

Subtotal 1 450 000.00

TOTAL 7 909 293,13

Date : 11/10/2017 (*) Source : EDRIS reports. https://webgate.ec.europa.eu/hac Empty cells : no information or no contribution.

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Annex 4 – Maps

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Electronically signed on 27/11/2017 18:11 (UTC+01) in accordance with article 4.2 (Validity of electronic documents) of Commission Decision 2004/563